Superseded: Guidelines For Inspection Of Class 2 To 9 Buildings

Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.A risk-based approach to inspection of class 2 to 9 buildingsThese guidelines apply a risk-based approach to theinspection of class 2 to 9 buildings. The guidelines aimto provide practical and effective methods for buildingcertifiers to meet their statutory duties and obligations. A riskmatrix, with examples of suggested application to particularbuildings, forms part of the guidelines and complements therisk-based approach to inspections.The size, complexity, and nature of some class 2 to 9 buildingsmeans it is not practical for a building certifier to inspectevery element of the building for compliance with the buildingassessment provisions of the BA.To ensure best industry practice, building certifiers mustconsider assuming responsibility for determining andimplementing an inspection schedule (i.e. what should beinspected and when) for the various aspects of building work.An inspection schedule that relies on prescriptive,itemised checklists may not sufficiently address the varyingcomplexities that exist between class 2 to 9 buildings. Thiscould lead to instances where low-risk buildings are overinspected (significantly adding to costs and delays) andhigh-risk buildings are under inspected (increasing the risk).A best practice method of inspections of class 2 to 9 buildingsshould directly address the risk of the building. A risk-basedapproach allows building certifiers to take an overall viewof the safety requirements of a building and establish aninspection schedule.Getting startedIntended use and classificationof the buildingThe use of a building will ultimately determine how it is tobe classified under the BCA. Classifying a building involvesa process of understanding risks according to its use. It istherefore critical to clearly understand the intended use of abuilding so the appropriate classification is applied. Correctclassification will achieve the assessment and application ofthe relevant provisions of the BCA. This will provide a basis forestablishing the most beneficial schedule of inspections toensure proper compliance.Most large commercial and public buildings will involvemultiple uses and therefore different levels of risk will apply.Correct classification of these different parts of the proposedbuilding is imperative so that the applicable building codeprovisions can be identified and an appropriate inspectionschedule can be established. It may become clear that abuilding will have higher-risk uses (such as a hospital) whilealso accommodating lower-risk uses (such as car parking).The delineation of these risks is the first step for a buildingcertifier to consider when determining the inspectionschedule and allocation of resources. This will assist inensuring compliance with the BCA and approval documents.The importance of detailed documentationA building certifier should require that satisfactory levels ofdetailed documentation are provided so that the necessarybuilding code compliance assessment can be properly carriedout. The ability to refer to detailed documentation provides avital reference tool and assists in ensuring that inspectionsof key building elements are conducted and not inadvertentlyoverlooked.The effectiveness of an inspection is enhanced by the clarityof information in the approval documents. With complexmatters involving things such as fire safety systems, theremay be a need to complement details on plans with relevantspecifications. It may be that the plans provide a location ofa particular component while its installation and function isbetter understood through supporting information.A building certifier should require all necessary informationto be readily available to assist in formulating an inspectionschedule. An added advantage of readily available informationis a reduction in unnecessary interruptions to the continuityof the process. For example, the location of smoke exhaustintakes can be easily identified on general plans. Theconstruction and integration of the required ductwork maynecessitate far more detailed specifications for such thingsas fire dampers, support mechanisms and system monitoring.Consideration of such matters in the assessment of anapplication is necessary so that the effectiveness and timingof on-site inspections is further enhanced.Even though simple matters such as ceiling heights may onlyrequire indicative representation in documentation, theymay have an impact on the timing of inspections and otherassociated elements.The importance of detailed documentation should not beunderestimated in the context of inspecting building work.The role of a building certifier was explored in the legalcase of Toomey v Scolaro’s Concrete Constructions Pty Ltd[2001] (Toomey’s case). This case is discussed later in theseguidelines and highlights a building certifier’s responsibilityin relation to examination of details in plans and documentsfor compliance with building legislation and standards. Thecase makes it clear that the responsible building certifierneeds to carefully check the details of the plan against theapplicable standards and codes. Any ambiguity in the plansshould be resolved and errors corrected before proceedingwith construction of the work.3Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.

Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.Care needs to be taken to adequately identify where analternative solution is proposed. Particular aspects of theproposal may warrant a specific inspection. This is especiallyimportant for unusual or unique proposals because therelevant practitioners may have limited experience inundertaking the work. For example, an alternative solutionmay have a number of important facets such as the expectedairflow from smoke extraction fans. During construction, acontractor may decide to purchase a different model of fanwhich may affect the operation of the fire safety system duringa fire. Only an inspection would identify this crucial change.On-site and general compliance checkingOn-site construction is a translation of the detail in plansand specifications to the physical fabric and elements of abuilding. The more detail available to a builder, the easierit is to provide a finished product that will comply with theapproval documents and the applicable building codes. Whilethis may be self-evident, it will only be effectively achieved ifsufficient inspections are conducted to ensure compliance.Building certifiers are responsible for ensuring specificcompliance is achieved. Visual inspections, carried out bythe building certifier or a competent person on their behalf,are the most effective way of confirming that the details of thedocumentation are reflected in the actual on-site construction.However, building certifiers are not responsible for the qualityof workmanship within the construction process. This is thecontractual obligation of the builder to the client.It is essential at the early stage of construction that thebuilding certifier ensures the building is located on the site,in accordance with the building development approval.4For example, before the building work substantiallycommences, the building certifier should require evidenceconfirming the building will comply with the buildingdevelopment approval conditions.Toomey’s case (referred to above) indicated that buildingcertifiers must oversee building code compliance and instigatesome reasonable and reliable checking process. As class 2 to9 buildings contain a large range of safety features specifiedby various parts of the building code, this is an importantpractice to adopt.A realistic level of random auditing by a building certifier (or acompetent person inspecting on their behalf) should form partof a reasonable inspection schedule. For example, a buildingmay require systems of smoke detection, sprinkler protection,fire collars, fire hydrants and various other fire safety systems.A reasonable level of auditing inspections may involve randomchecking of some matters of compliance for each system ona number of levels of the building. Examples of how such anaudit might be achieved include but are not limited to: fire-rated penetrations sound-rated construction for duct work concealed space detection as part of a fire safety system.When noncompliance is detected during an audit, the buildingcertifier should consider increasing the frequency and detailof inspections. This will ensure overall compliance with thebuilding development approval is achieved. Reinspection ofthose identified noncompliant elements of the constructionmay have to be undertaken. It would not be acceptable toleave all the compliance matters to be confirmed only byinstaller certificates.Building Codes Queensland – Guidelines for inspection of class 2 to 9 buildingsSuperseded on 1 October 2020. See business.qld.gov.au for current guidelines.

Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.Managing the processEffective communicationThere is a diverse range of people involved in the constructionof a modern building. A building certifier needs to developeffective communication strategies with all of these people.Identifying risks, ensuring the availability of detailedplans, and developing inspection schedules will be of littlevalue if they are not supplemented by effective, ongoingcommunication. This is particularly important wherethere have been design or other changes throughout theconstruction of the building that have not been made knownto the building certifier.A tragedy in South Australia highlighted the fact thateach specialist area tends to communicate to its own verylimited field of participants and not to the broader groupof consultants, contractors and other professionals. Theincident involved the collapse of a trussed roof on a bowlingclub and was the subject of a recent coronial inquiry. Inthis case, the Coroner made comments in relation to theway in which different participants in the building industrycommunicate or, rather, fail to communicate well. The Coronercommented that it was clear from the evidence in the inquestthat the building industry is highly compartmentalised.Simply conveying a piece of information to another party maynot be sufficient if the party is not aware of the significance ofthe information. In complex buildings there may be a broadcross-section of consultants and other building professionalsall responsible for various building systems and components.It is inevitable that these systems and components will insome way integrate with each other as part of the completebuilding. For example, a mechanical ventilation systemoperating as smoke extraction may pass through elements ofconstruction (i.e. walls and floors). The construction of bothof these elements is managed by different practitioners whomust communicate effectively to ensure that each systemcomplements the other so that compliance is achieved.It is crucial that everybody involved in the building processhas established clear lines of open communication to shareinformation. A building certifier has responsibility to ensurethe completed building complies with the approval andBCA. To help achieve this, a building certifier should, as faras practicable, encourage communication between relevantpractitioners at the beginning of a project. For example,a building certifier, upon approval, could arrange to meetpractitioners responsible for managing a building projectto establish the extent of the construction program and keyareas requiring inspection. At this point the building certifiercould emphasise to the building contractor the importanceof being notified of any changes to relevant practitionersinvolved in the project.Managing changes to the constructionof a buildingThe more complex the building project, the higher thelikelihood will be of changes to design, specifications or othercrucial elements throughout the construction phase. Whilethis is considered normal for complex projects, it is an issuethat can cause significant problems with overall compliancewith the BCA.As part of the communication strategy, building certifiersshould request that they be advised of any proposed changesto the construction of a building. Even the smallest changescan impact on whether or not a building complies with thebuilding code.Building certifiers should consider the potential forconsequential implications of any change and whetheradditional checking is required. A lack of communicationmay result in significant rescheduling of inspections whichsubsequently impacts on costs and project timeframes.Departures from the approved plans, such as changing thewaterproofing treatment to an external balcony from a thinmembrane to a thick mortar bed, can impact on the finalcritical dimension of the balustrade height. If this is notmade known to the building certifier when it occurs, andconstruction continues, it may result in significant, timeconsuming and costly remedial work. Regular audits by thebuilding certifier will minimise the likelihood of these changesremaining undetected.Managing changes to practitioners involvedin the building processSimilar to changes in the actual construction of a building,changes to the practitioners involved in a building project cancause issues relating to overall compliance. If a practitionerchanges throughout the course of a building development,building certifiers need to consider several consequences thatmight arise with respect to this change.For example, if a new practitioner is responsible for acomponent of the building’s design, the building certifiermust establish, and be satisfied with, the level of competenceof the new practitioner. A building certifier must be aware ofthe impacts upon systems and building components that mayflow as a result of the introduction of the new practitioner.The introduction of a new practitioner could result in a changeto the design which will require reassessment and amendedapproval of the changed elements.If a specific component, such as a fire safety system of thebuilding, is under the control of a new practitioner (includingone relating to a design and construct contract), a buildingcertifier will need to assess the work to ensure continuedcompliance with the approval and BCA. If a new assessment isrequired it must be carried out promptly so as not to interferewith the construction program. It will also ensure thatany impacts on other systems or building components areunderstood and also checked for continued compliance.5Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.

Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.Risk matrix: a tool for establishing a sufficient inspection schedulefor class 2 to 9 buildingsThe use of a risk-based approach to developing and implementinga sufficient inspection schedule can be achieved through a riskmatrix that assigns buildings a rating based on certain criteria.The risk rating assists the building certifier in determiningan inspection schedule, including the type and frequency ofinspections required.How to use the risk matrixThe risk matrix contained in these guidelines identifies three riskcategories: low, medium and high. To establish the risk level,a building is assessed against five risk factors. Each risk factorcontains broad criteria against which to compare buildings sothat a risk level can be established.A risk level is established if all the criteria under a particular levelare met. For example, a building will be considered to have alow-risk level if it meets and does not exceed any of the risk factorcriteria for that level. If the criterion of one or more risk factorsunder the low-risk level is exceeded, the building’s risk levelwould be increased to the next relevant level.This matrix is a guide to establishing the level of risk. There maybe development proposals that present unique risk factors thatare not specifically addressed. In these cases the matrix shouldbe considered in context, along with any additional uniquefactors, to arrive at a logical level of risk for a proposal.Risk matrixRisk factorRisk levelLow riskMedium riskHigh riskBuildingclassificationBuilding is a class 2, 3, 4 (part ofa building), 5, 6, 7 or 8 and has arise in storeys of less than threestoreys.Building is class 2, 3, 4 (part ofa building), 5, 6, 7 or 8 and has arise in storeys of more than threestoreys.Building is class 9 or of any classdetermined to be of importancelevel 3 or 4 in accordance withthe BCA.Height/floor areaNot greater than three storeysabove the ground.More than three storeys aboveground but no more than 25metres in height.Contains fire compartmentsexceeding the provisions ofBCA Table C2.2.Fire compartments do not exceedthe provisions of BCA Table C2.2.6More than 25 metres in height.AlternativesolutionsNo alternative solution – proposalmeets deemed-to-satisfyprovisions of BCA.Incorporates alternative solutionnot involving fire safety systems.Incorporates alternative solutioninvolving fire safety systems.Experience ofthe design andbuilding teamPractitioners designing andconstructing the building havebeen involved with more thanthree buildings of the sameclassification.Practitioners designing andconstructing the buildinghave been involved with,and completed, fewer thanthree buildings of the sameclassification.Practitioners designing andconstructing the building haveno previous experience relatingto the proposed classification orbuilding type.ClimaticconditionsArea is not impacted upon byknown risks e.g. flood, bushfire,earthquake, cyclone, landslip.Area has known risks e.g. flood,bushfire, earthquake, landslip,contaminated land.Area has known risks e.g. flood,bushfire, earthquake, landslip,contaminated land.Building is not a class 9.Building is a class 9.Building Codes Queensland – Guidelines for inspection of class 2 to 9 buildingsSuperseded on 1 October 2020. See business.qld.gov.au for current guidelines.

Superseded on 1 October 2020. See business.qld.gov.au for current guidelines.Height and floor areaRisk factorsThe risk matrix comprises factors that are most likely to posean element of risk for those occupying a building. Theserisk factors range from the physical size of a building to itsclassification under the BCA. Also included are criteria relatingto the experience of the design and building team. While thisaspect is not directly aligned with the requirements of theBCA, it is an important issue to consider in the context of abuilding certifier’s statutory functions.The BCA is structured in a way that sets out standards ofconstruction based on general risk to the occupants of abuilding. For example, the BCA provides that a single storeyshop with a floor area of less than 500 m2 can be constructedto a lower fire resistance level than a four storey shop with afloor area exceeding 2000 m2.This reflects the higher risks to occupants required toexit a multi-storey building in the event of an emergency.A multi-storey building under fire conditions must becapable of maintaining structural integrity so that peoplecan evacuate safely.The BCA also recognises that buildings of a public nature suchas public halls, hospitals and aged care facilities pose greaterrisks to occupants than buildings used for bulk storage ormanufacturing processes. Public buildings pose unique risksto occupants who may be incapable of evacuating a buildingwithout assistance.The risk factors and their criteria are broadly aligned withthose set out in the various parts of the BCA.The following is an overview of each risk factor in the riskmatrix and the general criterion for the different risk levels:Building classificationThe BCA classifies buildings according to their use which inturn reflects the level of risk to which occupants are exposed.Generally, the system of classification places buildings intothree use categories: residential buildings (includes classes 2, 3 and 4) commercial buildings such as offices, shops, warehousesand factories (includes classes 5, 6, 7 and 8) buildings of a public nature such as halls, hospitals andaged care facilities (class 9 buildings).The risk matrix has allocated a level of risk to the various usecategories considering the rise in storeys and vulnerability ofthe occupants.Essentially, it is considered that all building classes, with theexception of class 9, with a rise in storeys not exceeding threecan be considered as low risk. The medium-risk level appliesto all building classes except class 9 that have a risein storeys of more than three. The high-risk level includesclass 9 buildings and any class of building that hasbeen determined to have an importance level of 3 or 4 inaccordance with the BCA.Buildings are considered to pose less risk to occupantswhere the rise in storeys is no greater than three and thesize of fire compartments does not exceed the maximumareas set out under the BCA. The required level of fireresistance and the type of fire safety systems required underthe BCA mean occupants can generally evacuate quickly andsafely to open space.Buildings greater than three storeys are subject to morecomplex requirements relating to fire resistance and havemore complex fire safety systems. These requirementsare a reflection of the increased risks to occupants. This isparticularly important in those buildings involving permanentresidency, where people sleep on a regular basis or whereresidents have high levels of dependency.Alternative solutionsAs a performance-based document, the BCA provides aframework for building solutions that can be achieved byaltering or departing from the prescriptive deemed-tosatisfy requirements. Departing from the deemed-to-satisfyrequirements of the BCA often means that a building mustcomply with a complex, one-off, specific design. The designwill generally involve the coordination of multiple systems ormethods of construction within a building.Commonly, alternative solutions address changes to the typeand lev

The BR requires mandatory inspections for more simple buildings and structures, such as houses (class 1a . buildings) and sheds and garages (class 10 buildings and structures). Guidelines are available for these classes of buildings to assist building certifiers to undertake inspections. The BR does not currently provide a similar inspection